What is the Default Surcharge?
Default Surcharge is a civil penalty to “encourage” businesses to submit their VAT returns and pay the tax due on time the charge is introduced via VATA 1994 s 59(A).
When will a Default Surcharge be issued?
A business is in default if it sends in its VAT return and or the VAT due late. No surcharge is issued the first time a business is late but a warning – a Surcharge Liability Notice (SLN) is issued. Subsequent defaults within the following twelve months – the “surcharge period” may result in a surcharge assessment. Each time that a default occurs the surcharge period will be extended. There is no liability to a surcharge if a nil or repayment return is submitted late, or the VAT due is paid on time but the return is submitted late (although a default is still recorded).
How much is the surcharge?
The surcharge is calculated as a percentage of the VAT that is unpaid at the due date. If no return is submitted the amount of VAT due will be assessed and the surcharge based on that amount. The rates are:
- 2% for the first default following the SLN, and rises to
- 5%
- 10%
- 15% for subsequent defaults within the surcharge period.
A surcharge assessment is not issued at the 2% and 5% rates if it is calculated at less than £200 but a default is still recorded and the surcharge period extended. At the 10% and 15% the surcharge will be the greater of the calculated amount or £30.
Specific issues
The default surcharge can be particularly swingeing for a fast-growing company. Let’s say that a small company grows quickly. In the early days the administration was rather haphazard, as is often the case, and a number of returns and payments were submitted late. Fast forward and the turnover, and the VAT payable, has grown significantly. Being late at this time means that the amount of default surcharge is considerably higher than when the original default which created the surcharge took place. This leads us onto whether the surcharge is proportionate.
A business with cashflow difficulties may well ask whether it should be penalised by HMRC for having those difficulties; which of course will add to the problem.
Proportionality
The existing, long-standing default surcharge regime has always had issues with the principle of proportionality. The regime has regularly been challenged in the Courts.
Is it proportionate that a same penalty is applied for a payment which is one day late and one which is one year late? This is a matter which has concerned both HMRC and the Courts for a number of years.
In the Upper Tribunal case of Total Technology (Engineering) Ltd the Judge concluded that it was possible for an individual surcharge to be disproportionate, but that the system as a whole was not fundamentally flawed. It is also worth noting that in In Equoland judgment the judge stated that a penalty which is automatic and does not take into account the circumstances is at the least tending towards being disproportionate.
Disagreement over a surcharge
If you disagree with a decision that you are liable to surcharge or how the amount of surcharge has been calculated, it is possible to:
- ask HMRC to review your case
- have your case heard by the Tax Tribunal
If you ask for a review of a case, a business will be required to write to HMRC within 30 days of the date the Surcharge Liability Notice Extension was sent. The letter should give the reasons why you disagree with the decision.
Defence against a surcharge
In order to have a surcharge withdrawn (it cannot be reduced, as it is one of the few penalties that cannot be mitigated in any circumstances) it is necessary to demonstrate that a business had a reasonable excuse for the default. This is a subject of an article on its own. Certain factors, like relaying on a third party are not accepted as a reasonable excuse. HMRC state that a business will not be in default if they, or the independent tribunal, agree that there is a reasonable excuse for failing to submit a VAT Return and/or payment on time.
There is no legal definition of reasonable excuse but HMRC will look closely at the circumstances that led to the default.
If the circumstance that led to the default were unforeseen and inescapable and a business is able to show that its conduct was that of a conscientious person who accepted the need to comply with VAT requirements, then it may amount to a reasonable excuse.
What sort of circumstances might count as reasonable excuse?
HMRC provide guidelines on circumstances where there might be a reasonable excuse for failing to submit a VAT Return and/or payment on time. These include:
- computer breakdown
- illness
- loss of key personnel
- unexpected cash crisis – where funds are unavailable to pay your tax due following the sudden reduction or withdrawal of overdraft facilities, sudden non-payment by a normally reliable customer, insolvency of a large customer, fraud or burglary. A simple lack of money is unlikely to be accepted as a reasonable excuse.
- loss of records
Ongoing issues
HMRC is considering whether and how it should differentiate between those who deliberately and persistently fail to meet administrative deadlines or to pay what they should on time, and those who make occasional and genuine errors for which other responses might be more appropriate. This has been a lengthy process to date.
A previous HMRC document highlighted two issues with the current VAT default surcharge regime.
- while the absence of penalty for the initial offence in a 12-month period gives business the chance to get processes right, some customers simply ignore this warning
- is there an issue of proportionality, ie; the failure to distinguish between payments that are one or two days late or many months late?
It is possible that in the future we may hear proposals for the system being amended. if this is the case, I think we can anticipate the introduction of mitigation and suspension.